Focusing public attention on emerging privacy and civil liberties issues

Whole Body Imaging Technology and Body Scanners ("Backscatter" X-Ray and Millimeter Wave Screening)

Introduction

EPIC has filed a lawsuit to suspend the deployment of body scanners at US airports, pending an independent review. Body scanners produce detailed, three-dimensional images of individuals. Security experts have described whole body scanners as the equivalent of "a physically invasive strip-search." The Transportation Security Administration operates the body scanner devices at airports throughout the United States. On July 2, 2010, EPIC filed a petition for review and motion for an emergency stay, urging the District of Columbia Court of Appeals to suspend the Transportation Security Administration's (TSA) full body scanner program. EPIC said that the program is "unlawful, invasive, and ineffective." EPIC argued that the federal agency has violated the Administrative Procedures Act, the Privacy Act, the Religious Freedom Restoration Act, and the Fourth Amendment. EPIC cited the invasive nature of the devices, the TSA's disregard of public opinion, and the impact on religious freedom.

Top News

  • EPIC Presses for Release of Government Documents on Health Risks of Airport Body Scanners: EPIC has filed an appeal with the Transportation Security Administration, challenging the agency's denial of expedited processing and fee waivers for an EPIC Freedom of Information Act request. EPIC's is seeking documents from the TSA concerning full body scanner radiation risks and testing. EPIC challenged the TSA's denial of expedited processing, arguing that by delaying to release of the records, the agency was risking the health of travelers and its own employees. EPIC also argued that the record request was particularly timely, as three US Senators recently wrote to the Department of Homeland Security about the safety of the airport body scanners and the risk to air travelers. Separately, EPIC has urged a federal court to suspend the program, pending an independent review of the health risks and privacy impact. For more information, see EPIC: Body Scanners and EPIC v. DHS (suspension of program). (Aug. 30, 2010)
  • Following EPIC FOIA Lawsuit, US Senators Raise Questions About Retention of Body Scanner Images: The Chairman and Ranking Member of the Homeland Security Committee, along with four other Senators, have sent a letter to the head of the US Marshal Service to ask why the federal agency stored more than 35,000 images from whole body imaging scans taken at the Orlando federal courthouse. The letter follows a Freedom of Information Act lawsuit, filed by EPIC, in which the Marshal Service was forced to disclose the fact that it had stored body scanner images. EPIC has also filed an emergency motion in federal court to suspend the program, pending a thorough review of the airport body scanner program. For more information, see EPIC: Whole Body Imaging Technology and EPIC v. DHS (Suspension of Body Scanner Program). (Aug. 20, 2010)
  • Senators Question Safety of Airport Body Scanners, Object to Program Expansion: Three U.S. Senators have objected to the Department of Homeland Security's expansion of the airport body scanner program. In a letter to DHS Secretary Janet Napolitano, Senators Collins (R-ME), Burr (R-NC), and Coburn (R-OK) have asked "why the Department continues to purchase this technology when legitimate concerns about its safety appear to remain unanswered." The Senators noted that "the issue of radiation associated with the backscatter x-ray AIT machines has not been adequately addressed by TSA." They urged the agency's Chief Medical Officer, working with independent experts, to conduct a review of the health effects on travelers and airport personnel. EPIC recently submitted a FOIA request to the DHS for all records of tests conducted by the agency regarding radiation impacts. EPIC has also filed an emergency motion in federal court to suspend the program, pending an thorough review of the airport body scanner program. For more information, see EPIC: Whole Body Imaging Technology and EPIC v. DHS (Suspension of Body Scanner Program). (Aug. 18, 2010)
  • EPIC FOIA - Feds Save Thousands of Body Scan Images: In an open government lawsuit against the United States Marshals Service, EPIC has obtained more than one hundred images of undressed individuals entering federal courthouses. The images, which are routinely captured by the federal agency, prove that body scanning devices store and record images of individuals stripped naked. The 100 images are a small sample of more than 35,000 at issue in the EPIC lawsuit. EPIC has pursued a similar FOIA lawsuit against the Dept. of Homeland Security but the DHS refuses to release the images it has obtained. EPIC has also filed suit to stop the deployment of the machines in US airports. For more information, see EPIC Body Scanners, EPIC - EPIC v. DOJ (Marshall Service FOIA), and EPIC Press Release. (Aug. 4, 2010)
  • DHS Announces Dramatic Expansion of Airport Body Scanner Program : On July 20, 2010, the Department of Homeland Security announced a substantial change in the deployment of body scanners in US airports. According to the DHS Secretary, the devices, which had once been part of a pilot program for seconary screening, will now be deployed in 28 additional airports. The devices are designed to capture and store photographic images of naked air travelers. EPIC has filed an emergency motion in federal court, urging the suspension of the program and citing violations of several federal statutes and the Fourth Amendment. Public opposition to the program is also growing. For more information, see EPIC v. DHS (Body scanners) and EPIC Body Scanners. (Jul. 21, 2010)
  • EPIC Pursues Lawsuit Against Homeland Security, Urges Court to Suspend Body Scanner Program: Today, EPIC filed a reply in its case against the Department of Homeland Security, EPIC v. DHS,10-1157. EPIC had previously filed a petition and motion for emergency stay, asking the court to suspend the use of the machines. EPIC argued that the use of body scanners for primary screening in U.S. airports violates several federal laws and the Fourth Amendment. In its reply to the government's motion, EPIC also cited the growing public opposition to the program, the decision of major airports not to use body scanners, as well as the agency's failure to adequately address Constitutional concerns. For more information, see EPIC: Body Scanners and EPIC v. DHS. (Jul. 20, 2010)
  • EPIC Seeks DHS Records on Body Scanner Health Impacts: Today EPIC filed a Freedom of Information Act request with the Department of Homeland Security for studies conducted by the agency and third parties concerning radiation and health testing of body scanners. The EPIC request follows a recent report by Dr. David Brenner to the Congressional Biomedical Caucus that radiation exposure may be up to twenty times greater than the DHS acknowledged. In April 2010, several  scientists urged Presidential Science Adviser Dr. John P. Holdren to conduct further evaluation of the health risks of body scanners. EPIC is pursuing FOIA litigation against the DHS regarding full body scanners, and has also filed a lawsuit to halt the use of the devices. For more information, see: EPIC: Body Scanners and EPIC v. DHS. (Jul. 13, 2010)
  • Full Body Scanner Bill Introduced in Senate: Senators Klobuchar (D-MN) and Bennett (R-UT) have introduced a bill that would mandate the deployment of full body scanners in US airports. The bill would make Full Body Scanners the primary screening technique. The bill would provide for an alternative screening method for passengers with "privacy concerns." The bill contains particularly weak privacy provision that ignore many of the problems with the devices already uncovered. In 2008, the House passed legislation to prevent the use of body scanners as primary screening devices. Documents later obtained by EPIC established that the TSA required that Full Body Scanner have the ability to store, record, and transfer detailed images of naked air travelers. EPIC has recently filed suit against the Department of Homeland Security to require that the program be suspended, pending an independent review. For more information, see: EPIC: Body Scanners and EPIC v. DHS. (Jul. 8, 2010)
  • In Emergency Appeal, EPIC Urges Court to Suspend TSA's Full Body Scanner Program: Today EPIC filed a petition for review and motion for an emergency stay, urging the District of Columbia Court of Appeals to suspend the TSA's full body scanner program. EPIC said that the program is "unlawful, invasive, and ineffective." EPIC argued that the federal agency has violated the Administrative Procedures Act, the Privacy Act, the Religious Freedom Restoration Act, and the Fourth Amendment. EPIC cited the invasive nature of the devices, the TSA's disregard of public opinion, and the impact on religious freedom. EPIC, and more than two dozens organizations, previously petitioned the agency for a public rulemaking, which the TSA disregarded. EPIC has also testified in Congress about the problems with the body scanner program. Members of the Senate, Ralph Nader, and European officials have also expressed concern. The case is EPIC v. DHS, No. 10-1157. For more information, see EPIC: Body Scanners. (Jul. 2, 2010)
  • Report from European Commission Raises New Questions About Airport Body Scanners : A report prepared for the European Parliament and the European Council on the controversial proposal to deploy body scanners at European airports warns of "a serious risk of fragmenting fundamental rights of EU citizens, impeding their rights of free movement, and escalating their health concerns related to new security technologies." The report recommends common European standards to ensure the protection of fundamental rights and to address health concerns. The report also recommends security scanners that are less intrusive and pose fewer health risks than those currently deployed in US airports. Earlier this year, EPIC and Ralph Nader urged President Obama to suspend the airport body scanner program until "a comprehensive evaluation of the devices' effectiveness, health impacts, and privacy safeguards is completed by an independent board of review." For more information, see EPIC: Whole Body Imaging. (Jun. 16, 2010)
  • TSA Broadens Use of 'Backscatter X-Ray' Machines That Conduct 'Virtual Strip Searches': The Transportation Security Administration is expanding the use of "backscatter X-ray" systems for passenger screening. The $100,000 refrigerator-size machines use "backscatter" technology, which bounces low-radiation X-rays off of a passenger to produce photo-quality images of travelers as if they were undressed. Computer processing partially obscures the image that is available to operators. TSA states that the agency will delete the raw images, but there is no law or regulation that prevents the agency from saving the original, detailed images. Until there is such a prohibition, EPIC believes funding for the program should be suspended. See EPIC's Spotlight on Surveillance and page on Backscatter X-ray. (October 11, 2007)
  • Field Tests Begin in Arizona on Backscatter X-Ray Machines: An X-ray machine aimed at detecting weapons and explosives hidden on passengers is scheduled to make its debut Friday at Phoenix's Sky Harbor International Airport. The "backscatter" will be in operation at Security Checkpoint B in Terminal 4. While any Terminal 4 ticketed passenger can pass through any checkpoint, the B concourse is primarily used by travelers on Tempe-based US Airways. (February 21, 2007)
  • Phoenix Airport to Use 'Backscatter' X-Ray on Travelers: Sky Harbor International Airport here will test a new federal screening system that takes X-rays of passenger's bodies to detect concealed explosives and other weapons. The technology, called backscatter, has been around for several years but has not been widely used in the U.S. as an anti-terrorism tool because of privacy concerns. (December 1, 2006)

Background

Post-September 11, airline travel security has invoked the increased use of technology and better training of security personnel as a means of improving travel security. Some of these proposals, such as improved training for airport screeners, checking all bags for bombs, strengthening cockpit doors, and placing air marshals on flights, do not implicate privacy interests and are sound security measures. Others, however, present privacy and security risks to air travelers because they might create data files directly linked to the identity of air travelers. These files if retained could provide the basis for a database of air traveler profiles. The Transportation Security Administration utilizes two technologies to capture naked images of air travelers - backscatter x-ray technology and millimeter wave technology.

In 1895 x-rays1 were discovered by Wilhelm Röntgen.2 This discovery of how to look through an object to observe details beneath has advanced to include new techniques. One such technique called "backscatter" X-Ray is based on "the emergence of radiation from that surface of a material through which it entered. Also used to denote the actual backscattered radiation.3"

backscatter imageThe application of this new x-ray technology to airport screening uses high energy x-rays that are more likely to scatter than penetrate materials as compared to lower-energy x-rays used in medical applications. Although this type of x-ray is said to be harmless it can move through other materials, such as clothing.

A passenger is scanned by rastering or moving a single high energy x-ray beam rapidly over their form. The signal strength of detected backscattered x-rays from a known position then allows a highly realistic image to be reconstructed. Since only Compton scattered x-rays4 are used, the registered image is mainly that of the surface of the object/person being imaged. In the case of airline passenger screening it is her nude form. The image resolution of the technology is high, so details of the human form of airline passengers present privacy challenges.

Airport security has undergone significant changes since the terrorist attacks of Sept. 11, 2001. Recently, the Transportation Security Administration (TSA) announced a proposal to purchase and deploy "Whole Body Imaging" X-ray machines to search air travelers at all airports. TSA said it believes that use of the machines is less invasive than pat-down searches. However, these machines, which show detailed images of a person's naked body, are equivalent to a "digital strip search" for all air travelers. This proposal, along with the agency's controversial plan to profile air travelers, shows extraordinary disregard for the privacy rights of air travelers. The Department of Homeland Security is requesting $72 million to invest in detection systems, which includes funding for the backscatter machines, which cost between $100,000 and $200,000 each.

The backscatter machines use high-energy X-rays that are more likely to scatter than penetrate materials as compared to lower-energy X-rays used in medical applications. Although this type of X-ray is said to be harmless, it can move through other materials, such as clothing. When being screened, a passenger is scanned by high-energy X-ray beam moving rapidly over her body. The signal strength of detected backscattered X-rays from a known position then allows a highly realistic image to be reconstructed. In the case of airline-passenger screening, the image is of the traveler's nude form. The image resolution of the technology is high, so the picture of the body presented to screeners is detailed enough to show genitalia. These images are not necessarily temporary - screeners can save the body images to the system's hard disk or floppy disk for subsequent viewing on either "the system monitor or on any IBM compatible personal computer with color graphics."

Backscatter X-Rays and Transportation Screening

The Transportation Security Administration claims that is not storing detailed images of passengers screened by the system. The agency also states that it is providing a screening option for passengers who object to screening by the technology. However, the technology is designed to accomplish what has been described on this page, and until the process of assuring that the claims of the agency are enforced--questions will remain about the use of the technology. EPIC will make available on this page aviation security and privacy -related documents it obtains from the government under the Freedom of Information Act law about the adoption of "backscatter" x-ray technology intended for use in screening air travelers.

womanThe stated goal of these new proposals is to rely on technology to reduce the "hassle factor" in airports and to reduce security threats. The core idea is to focus security resources on suspicious travelers, while ensuring that most people are not inconvenienced by heightened security. Terrorists, however, have been known to go to great lengths to look like most people. Will a technology that will capture detailed images of potentially all airline travel passengers lead to greater safety? Current technology can successfully detect dangerous substances, firearms and other weapons without backscatter x-ray imaging of passengers. Can the goal of safe air travel be reached without reproducing a digital image of a passenger's body? It has long been recognized by security experts that it is impossible to eliminate all threats to airline travel. Is the application of "backscatter" x-ray technology a deterrent and not a solution to perfect airline travel safety? If this is true, then is the trade off in passenger privacy worth the effort to deter terrorists? The application of security technology and increased passenger screening has also resulted in an increased detection of non-violent criminal offenses. Is the application of "backscatter" x-ray technology to screen airline passengers more than just a means of detecting terrorists?

In 2009, the TSA announced that Whole Body Imaging would replace metal detectors at airport security check points. This is a marked departure from the earlier promises by the agency that the technology would only be used for secondary screening of air travel passengers.

Airports Currently Using Whole Body Imagaing Technology

  • Albuquerque International Sunport Airport
  • Hartsfield-Jackson Atlanta International Airport
  • Baltimore/Washington International Thurgood Marshall Airport
  • Ronald Reagan Washington National Airport
  • Denver International Airport
  • Dallas/Fort Worth International Airport
  • Detroit Metro Airport
  • Indianapolis International Airport
  • Jacksonville International Airport
  • McCarran International Airport
  • Los Angeles International Airport
  • Miami International Airport
  • Phoenix Sky Harbor International Airport
  • Raleigh-Durham International Airport
  • Richmond International Airport
  • San Francisco International Airport
  • Salt Lake City International Airport
  • Tampa International Airport
  • Tulsa International Airport

Jan. 2010 NPC Event Materials

Latest News

Resources

Identification Schemes

Profiling

Other Documents

Analysis

  • Paper on the limitations of profiling, Roger Clark, Australia National University.
  • ACLU testimony before White House Commission on "Civil Liberties Implications of Airport Security Measures" (September 5, 1996).
  • Letter to Privacy Journal editor Robert Ellis Smith from the FAA denying Smith's request for a copy of the FAA Security Directive on identification of airline passengers.
  • HotWired article "Fear of Flying" on proposals. (September 11, 1996).

Other Airline Passenger Screening Resources

  • FAA Proposes Profiling Regulations. The Federal Aviation Administration published proposed regulations on April 19, 1999, governing "Security of Checked Baggage on Flights Within the United States." The draft rules detail the use of computer profiling techniques to identify suspicious passengers.
  • Airline Passenger Profiling Goes Into Effect. The Computer Assisted Passenger Screening System was scheduled to be phased in nationwide beginning on January 1. Under the system, passengers who "fit the profile" will be selected for heightened security measures, which can include a thorough search of their luggage, intrusive personal questioning, tagging of luggage with orange tape, and a physical escort from the check-in counter to the airport gate by security personnel. The ACLU is providing an online complaint form for passengers targeted by the profiling system.
  • Microsoft Chief Architect Charles Simonyi tells what happens when you "fit the profile" (from Slate).
  • Proposed FAA rule for collecting personal information including name, address, Social Security Number, Date of birth and next of kin for every domestic passenger.
  • General Account Office report, Aviation Safety and Security: Challenges to Implementing the Recommendations of the White House Commission on Aviation Safety and Security (Testimony, 03/05/97, GAO/T-RCED-97-90).
  • The Gore Commission has released its final report recommending passenger profiling. A coalition of 17 groups has sent a letter to Gore opposing ID checks, profiling, new x-ray technologies and excessive secrecy by the FAA in making decisions.

Legislative History

HR 1271. FAA Research, Engineering, and Development Authorization Act of 1997. Funds FAA projects for new surveillance technologies such as advanced x-ray systems for individuals. Introduced on 4/10/97 by Morella (R-Md). Referred to the House Committee on Science. Approved by Committee 4/16/97. Reported to the House H. Rept. 105-61 (CR H1714) on 4/21/97. Measure adopted on 4/29/97, RC #95 (414-7), (CR H1995). Referred to Senate Committee on Commerce, Science and Transportation (CR S3843) on 4/30/97.

Bill Passed the Senate: 11/13/1997
Mr. Sensenbrenner moved that the House suspend the rules and agree to the Senate amendments: 2/3/1998
Bill Passed the House by a voice vote: 2/3/1998 3:07pm:
Bill Signed into Law by President Clinton: 2/11/1998
Became Public Law No: 105-155.

References

1http://hyperphysics.phy-astr.gsu.edu/hbase/ems3.html#c4
2http://geology.b.dictonarypage.co.uk/backscatter/
3http://www.absoluteastronomy.com/encyclopedia/X/X/X-Ray_machine.htm
4http://hyperphysics.phy-astr.gsu.edu/hbase/quantum/comptint.html